MVDS_JA.pdf

JUSTIFICATION FOR AN EXCEPTION TO FAIR

OPPORTUNITY

Number: JA14-082A

Upon the basis of the following justification, I, as the Head of Contracting Activity, hereby approve this exception to fair opportunity pursuant to the authority of FAR 16.505(b)(2)(i)(B).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Agency:

609 Air Communications 851 Dryden Way Shaw Air Force Base (AFB), SC 29152

Contracting Office:

DITCO/PL8313

Building 3600 2300 East Drive Scott AFB, IL 62225

2. NATURE/DESCRIPTION OF ACTION: Approval is requested for an exception to fair opportunity for the Persistent Surveillance and Dissemination Systems of Systems {PSDS2) MVDS requirement to be awarded on a sole source basis under the ENCORE II Contract HCl 028-08-0-2024. The requirement is to provide services necessary to assure critical and uninterrupted PSDS2 MVDS operational support, systems and software enhancements, integration, information assurance, documentation and user training to the United States (U.S.)

Air Forces Central Command {AFCENT). AFCENT has a critical need to provide PSDS2 MVDS capabilities which is currently fielded and operational at the Air Operations Center (AOC) at Shaw AFB and the Combined AOC at Al Udeid, Qatar. Although AFCENT owns the PSDS2 MVDS system, the requirement is for a contractor to maintain this system. Since PSDS2 is a unique system developed by Raytheon, other contractors do not currently possess technical experience to provide the specialty services/upgrades that Raytheon can provide. This award is anticipated to be issued on a firm-fixed-price (FFP) basis and will be funded with fiscal year 14 Operations and Maintenance (O&M) funds.

3. DESCRIPTION OF SERVICES: PSDS2 MVDS is based on AFCENT's requirement to ingest, disseminate, archive and retrieve a large number of simultaneous sensors and full motion video feeds. PSDS2 MVDS ties together existing sensors into a common architecture to improve mission awareness/understanding by displaying sensor feeds on the video walls and workstations in AFCENT Air and Space Operation Centers. The currently fielded PSDS2 MVDS system is based on Raytheon's PSDS2 baseline which has been operational in U.S. Central Command (CENTCOM)'s area ofresponsibility (AOR) since 2005.

The administrative objective is for an O&M centric task order to meet all Department of Defense, Air Force (AF) and AFCENT guidelines for configuration management, security updates and technical documentation. Technical objective activities include the maintenance and engineering of the presentation, application, network, server, hardware, and storage virtualization technologies for MVDS. Additionally the technical activities include the integration, engineering and adaptation of various video streams for a wide variety of systems and transport mechanisms. Finally, it also includes resolving problems/deficiencies with the MVDS system and recommending solutions.

The contractor shall provide technical support for the operation of the deployed PSDS2 MVDS systems. The contractor shall provide O&M support to ensure the system is stable and operating according to AFCENT's unique requirements. For Continental U.S. (CONUS) operational support, the contractor shall provide support for resolution of technical problems associated with the operation of hardware and software. For outside CONUS operational support, the contractor shall provide O&M through field support representatives (FSR) onsite at Shaw AFB and Al Udeid Air Base, Qatar to ensure the system is stable and operating according to AFCENT's needs. The contractor shall provide engineering expertise to ensure the systems and related documentation is maintained for information assurance (IA) compliance.

The contractor shall provide reach back support to capture, record, and respond to feedback from users and the deployed engineering team in theater. The contractor shall recommend enhancements to AFCENT based on guidance and requirements from end users of persistent surveillance systems in theater, and based on feedback and guidance from the deployed engineering team. The contractor shall analyze requirements and define/allocate prototype system performance requirements, and conduct trade studies as needed to analyze design alternatives. The contractor shall present engineering analysis and recommendations for enhancements to AFCENT. Based on these analyses and as approved by the Government, the contractor shall develop and deploy enhancements to the system.

Period of performance:

Base period: August 28, 2014 -August 27, 2015 Option period 1: August 28, 2015 - August 27, 2016 Option period 2: August 28, 2016 - August 27, 2017

4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE

PROPOSED CONTRACTOR'S UNIQUE QUALIFICATIONS OR THE NATURE OF THE

ACQUISITION REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY:

(a) Exception to Fair Opportunity. Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

(b) Description of the Justification.

As the original equipment manufacturer (OEM) contractor for PSDS2, Raytheon retains specific intellectual property rights related to the development of the PSDS2 software.

Raytheon has provided significant continuity of effort to the various military personnel by having the expertise and maintaining the equipment while they rotate in and out of all locations, including Shaw AFB, Qatar and Pakistan. This continuity is the result of the expertise and familiarity of the locations, situational awareness of military organization mission impact, force protection mission, and execution of associated security protection tasks.

Introduction of a new contractor at this time would require considerable resources, time and effort to build the same level of expertise. AFCNET requires uninterrupted support in providing

PSDS2 MVDS capabilities that continue to support the CENTCOM AOR. Award to any other source would require approximately 12 months to fully train and obtain the onsite experience, layout, and understanding required to manage the system. Further, changing contractors would also result in a significant delay in receiving critical PSDS2 MVDS capabilities and would result in the additional cost in duplication of effort costs in order to maintain the current system.

(c) Justification: .

(1) Minimum Government requirements. The minimum requirement is the sustainment of engineering and technical support of the PSDS2 MVDS solution within the AFCENT ·enterprise with award not later than August 27, 2014.

(2) Proposed sole source contractor. Raytheon Company, 7700 Arlington Boulevard, Falls Church, Virginia, 22042 is the only source that can effectively and efficiently provide the uninterrupted highly specialized services for this award. Raytheon has provided PSDS2 MVDS technical services since September 6, 2011. An award to any other source would result in duplication of engineering efforts as the current PSDS2 MVDS system has been engineered, including software to specifically suit AFCENT's needs. Substantial duplication of costs is based on the resources necessary to procure design authority documentation, become familiar with the PSDS2 MVDS technical data package, obtain understanding of PSDS2 MVDS training curriculum and develop a SME to conduct PSDS2 MVDS training, establish the CONUS test bed with operational systems to enable a multiple tier support, duplicate the organic knowledge of the engineering team for the PSDS2 MVDS software baseline and duplicate the ability to provide quick response to software change requests, obtain the operational experience to perform FSR duties, and gain the knowledge of PSDS2 MVDS to support IA requirements.

(3) Discussion regarding cause of the sole source situation. As the OEM contractor for

PSDS2 and the design authority for PSDS2 MVDS, Raytheon has maximized use of commonality with the existing PSDS2 software to ensure interoperability with existing PSDS2 fielded systems. As such, AFCENT benefits from the synergy of the overall PSDS2 program which includes on-going efforts with the U.S. Army, U.S. Marine Corp (USMC), and CENTCOM. An award to any other source would negatively impact the efficiencies gained through the continued application of lessons learned on the other PSDS2 programs and the operational expertise of the PSDS2 FSRs (system administrators, maintainers, and intelligence analysts) for the PSDS2 MVDS support. Raytheon is the only contractor that can provide the advantage of PSDS2 software enhancements developed on the other PSDS2 contracts. As the OEM contractor for PSDS2, Raytheon retains specific intellectual property rights related to the development of the PSDS2 software. Raytheon asserts restricted/limited rights due to mixed funding on the PSDS2 software baseline, which includes the PSDS2 MVDS software baseline, in accordance with DFARS 252.227-7013 and DFARS 252.227-7014. The list of documents with Limited Rights is reflected below:

Master Software Version Description (SYD) Portal_Server_v3.7.x_Software_Version_Description RVS v3.7 Software Version Description PSDS2 Portal Administrator Training Section 1 PSDS2 Portal Administrator Training Section 2 PSDS2 Portal Administrator Training Section 3 PSDS2 Portal Administrator Training Section 4 PSDS2 Portal Administrator Training Section 5

PSDS2 Portal Administrator Training Section 6 PSDS2 Portal Administrator Training Section 7 PSDS2 Portal Administrator Training Section 8 PSDS2 MVDS System Subsystem Design Document Configuration Item Design Description

(4) Demonstration of unique source. Raytheon is the only contractor with the specialized knowledge and expertise to provide immediate support for AFCENT ensuring uninterrupted system performance and program execution. Raytheon is the only contractor with:

a. Extensive knowledge of a wide variety of sensor types and software interfaces for

PSDS2 MVDS

b. Highly skilled, experienced O&M personnel on-site at Al Udeid providing O&M support for PSDS2 MVDS

c. Deployable personnel with requisite clearances and network certifications required by AFCENT to support PSDS2 MVDS

d. Organic knowledge of software code and system design to enable quick response to software change requests and new features

e. An established CONUS test bed with a subset of the PSDS2 MVDS operational system for multiple tier support f.. Rights to intellectual property of all equipment associated with PSDS2 MVDS

(5) Procurement discussion. A competitive procurement was considered but determined to be unfavorable in terms of Government benefit. The respondents to the sources sought posted by the Government soliciting available sources and capabilities indicated that if another contractor were to perform, a change of software and/or hardware would be required. The proposed approach of reengineering the PSDS2 MVDS would create a serious duplication of effort as the Government would have to buy/install the new solution at three locations, and then test and submit for accreditation to fulfill the requirement. This deviation from the current operating environment would require the addition of significant time and effort for installation, testing and accreditation on the network. Beyond technical implications, accreditation for AFCENT's specific coalition environment in an expeditious fashion is a serious concern with some of the contractors' proposed solutions, potentially threatening mission needs.

(6) Impact. Raytheon is the only contractor capable of supplying the services defmed above without the AF experiencing substantial duplication of cost and experiencing unacceptable delays in fulfilling its requirements. Without the system support provided by Raytheon FSRs, AFCENT could not maintain commonality with the current PSDS2 baseline updates. Without the system baseline updates, AFCENT could not maintain PSDS2 MVDS commonality with the PSDS2 systems in use by the U.S. Army, USMC and CENTCOM. The result would be that PSDS2 MVDS would deviate from the overall PSDS2 baseline and AFCENT could no longer take advantage of updates developed under the PSDS2 program. Without PSDS2 it will prevent key players within AFCENT to view, access, disseminate, archive, and analyze full motion video. Also, it would dissolve the opportunity for a system to satisfy the growing need to process, expoit and disseminate Sensors, FMV, Location Data and C2 System data. The ability to utilize mission video to target assessment, analyze, create intelligence products, support decision makers, and forensics would be reduced.

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY